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Am Agrnry fnr (ttammmtity Srlf-Analysis 
anil (Eonperatiim 


To the many existing agencies in New York City coping with 
the problems of social work a new organization was added when 
the Bureau of Philanthropic Research began its active existence a 
little over a year ago. So short a period in the early life of any 
social agency can hardly be a fair criterion of its possibilities. On 
the other hand, in view of the multiplicity of institutions and 
individuals engaged in charitable work, presumably covering al¬ 
most every conceivable phase of social need and because of the 
complexity of effort arising through the magnitude of the general 
community problem in New York, the work thus far undertaken 
should prove an interesting indication of the potentiality for 
service of such an agency as this bureau. It was my intention 
to include in this paper a statement of the theoretical and practical 
reasons leading to the establishment of this agency in New York 
City and of its relationship to the general problems of philan¬ 
thropy. Unavoidably, however, because of limited time I found 
it impossible to devote myself to the preparation of such a 
paper. I will try to lay before you today the actual experience 
of the bureau during a twelve month period, with the hope that 
those points which are not clear will be brought out in discussion 
and through the asking of questions. 

The organization of the bureau consists of a board of nine 
trustees, supplemented by an advisory committee of fifteen, under 
the chairmanship of Dr. Lee K. Frankel. The advisory committee 
includes experts on various phases of philanthropy. There is, for 
example, an expert on relief work, on child care, on industry, on 
immigration, on agriculture, on medical work, on work for girls, 
on education and recreation. The executive staff consists of a 
director, an assistant director, a staff of investigators and clerical 
workers. Requests for proposed surveys and studies are received 
in the executive office and submitted to the expert on the advisory 
committee, under whose experience such a study would naturally 
come. The proposed study is then brought to the advisory com¬ 
mittee, with whose recommendation it is submitted to the board 
of trustees of the bureau, the latter taking final action. Upon the 
completion of the survey it is again presented in the same manner, 


3 


and after consultation with the advisory committee is finally 
brought before the board of trustees with the recommendations of 
this committee. 

The work of the bureau thus far indicates four logical de¬ 
partments : 

A division of Surveys and Research. 

A division of Inspection and Information. 

A division of Accounting and Record-keeping. 

A division of Training School and Personal Service. 

The first two mentioned are now actual departments of the 
Bureau’s work. With regard to the latter two, the experience of 
the Bureau merely indicates what can be done should such depart¬ 
ments be added. 

The Division of Surveys and Research includes work of a 
purely research character, together with social surveys of a prac¬ 
tical nature. One such survey, for example, was a study of day 
nurseries in New York City. Fourteen institutions under Jewish 
auspices were covered and an intensive investigation was made of 
each of these. Their experience and work was compared with 
that of non-Jewish institutions in New York City and in other 
parts of the country. Specific defects were pointed out. Definite 
recommendations for changes were made and a careful set of 
standards for day nursery care was prepared. Some of these 
institutions were found to be of a very high type and in standards 
compared favorably with the best in New York City and else¬ 
where. In other of the institutions, however, the study indicated 
conditions in urgent need of correction. A few of the institu¬ 
tions were found to be located in quarters totally unsuited to their 
work, defective in fire protection, space, ventilation and lavatory 
facilities. A few are inadequately equipped, lack proper sleeping 
accommodations and proper dining facilities. The furnishings in 
some instances are dilapidated, the walls barren, with no effort to 
provide a congenial, cheerful atmosphere for the children. Sani¬ 
tary precautions sometimes are not observed, the minimum regu¬ 
lations of the Board of Health not being enforced. On!e or two of 
the nurseries were found in unclean condition; capacities fixed 
by the Board of Health were exceeded, toilet articles were used in 
common, lavatory facilities were defective, scant provision being 
made in some instances for the bare physical needs of the chil¬ 
dren. In some instances adequate medical supervision was not 
provided. Little attention was paid to the possible remedy of 


4 


physical defects of the child discovered in the medical examina¬ 
tion at admission. A few of the nurseries were found poorly 
managed by incapable executives, hampered in turn by undue 
interference on the part of boards of managers. Low salaries and 
conditions of work called for reform. The cooperative phase of 
the work was found especially backward in some instances. The 
few cooperative media existing were not utilized and some of the 
nurseries, despite their proximity and their common problem, had 
no contact with one another. Some of the nurseries failed to rise 
to the proper conception of nursery effort, little being done for 
mothers or for children beyond physical care. In one or two 
instances practically no investigation was made before the admis¬ 
sion of a child info a nursery. In some instances proper leader¬ 
ship, an essential factor, was lacking. 

The Bureau submitted this report to its committee on day 
nurseries with instructions that the committee make itself thor¬ 
oughly familiar with the situation and reach the managers of 
these institutions with a view toward raising the general stand¬ 
ards of day nursery work done under Jewish auspices. This 
resulted in the organization of a conference committee, whose 
membership consisted of the president of each of the day nur¬ 
series investigated. From among these a chairman of the con¬ 
ference committee was chosen. A conference on day nurseries 
was arranged and held in the Russell Sage Foundation Building, 
the attendance reaching over 200. The morning session was de¬ 
voted to papers on subjects of immediate importance to those 
interested in day nursery work. One paper presented the results 
of the survey; another, by the Director of the Bureau of Child 
Hygiene of the City of New York, showed the relationship of that 
department to the day nursery; another paper, by the head of a 
large child-caring institution, pointed to the day nursery as a 
phase of child-care; still another paper showed the relationship 
between general relief work and the day nursery. The afternoon 
session was devoted to round-table discussions for members of 
boards of managers and members of the staffs of the various 
nurseries. Following this conference, separate conferences were 
held in the Bureau's office with representatives of each of the 
institutions, in which defects in the particular institutions were 
pointed out and plans made for improvements. 

I have presented the results of this survey in some detail 
merely to show the method of action adopted by the bureau for 
the introduction of proper standards in institutional work. The 


5 


cooperative method of presenting the results of a critical survey 
as done in this instance is especially important. It should be 
noted particularly that the conference, intended primarily to 
receive the recommendations of the bureau was arranged by and 
held under the direct auspices of the institution people them¬ 
selves, the conference committee including none other than the 
presidents of the various day nurseries. As a result of the con¬ 
ference, improvements in a number of the nurseries have already 
been instituted. Many others can be expected. 

In a similar way the bureau has undertaken a study of the 
provisions and needs for the temporary care of Jewish children in 
New York City; a study of the Jewish delinquent girl problem; a 
study of cooperative credit agencies in New York City; a study 
of the care of the Jewish blind. 

Under the Division of Inspections and Information comes a 
variety of activities. Among the most important, perhaps, is the 
investigation of institutions applying for admission to the Feder¬ 
ation for the Support of Jewish Philanthropic Societies. Where 
the basis of admission of societies to the Federation* is doubtful, 
they have been referred to the Bureau for a detailed investigation. 
In this way there have been inspected hospitals, dispensaries, in¬ 
stitutions for children, relief societies and others. In each of 
these cases a thorough study is made of every phase of the insti¬ 
tution’s work and a lengthy report presented for the considera¬ 
tion of the committee on admissions of the Federation. Investiga¬ 
tions are made also in response to requests for information from 
individuals, and advice is given to persons approached for the 
support of various philanthropic undertakings. Fraudulent or¬ 
ganizations and improper solicitation of funds are followed up 
and an effort made to stop them. During the legislative session, 
the Bureau, through this division, acts as a center of information 
on bills presented in the legislature which concern Jewish philan¬ 
thropic institutions. Organizations, either existing or proposed, 
which apply to the Bureau for the endorsement of their work are 
handled in this division. In such cases a careful study is made, 
sometimes extending into an actual survey, to discover the needs 
of the community for such work as is proposed. Duplication of 
effort is pointed out and often avoided. A specific example is 
the case of an organization doing work in infant hygiene and 
duplicating the work of the city milk stations conducted by the 
Department of Health. After a careful study of the situation this 
matter was brought to the attention of the splendid group of 


6 


women in charge of the work and though the organization was a 
recognized one and one of long standing it was decided to dis¬ 
continue the work and to devote its energies in another and more 
necessary direction. Very early in the Bureau’s history a request 
for endorsement was received from an institution which had been 
en gaged in the temporary care of children for over two years. 
The character of this institution is indicated in the following 
statement from the bureau’s report: 

This institution is fortunate in having the services 
of a group of women who not only offer their time and 
interest, but who show an entire willingness to cooperate 
with other organizations in advancing the character of 
the work done by their institution. As has already been 
indicated, however, the alertness of the managers is 
offset to a considerable degree by the handicaps neces¬ 
sarily encountered through the absence of proper quar¬ 
ters and adequate equipment for the care of children. 

The managers of this institution realized this deficiency and 
determined to leave their present building and move to other 
quarters. They were in a quandary, however, as to the best 
direction in which to expend their efforts. They did not know 
whether they were meeting in the proper way a specific need 
which was not already being handled elsewhere; they did not 
know whether their work warranted increased facilities, and if it 
did, where and how such facilities could best be provided. They 
were considering the transfer of their institution to new quarters, 
but no definite policy had been set down as the one to be followed 
for the future. Nor could this be done, because the management 
of this institution was at a loss as to the way in which it could 
best adapt itself to the most urgent needs of the Jewish com¬ 
munity along the lines of the work which it was doing. It was for 
answers to these questions that the Bureau was led into a general 
study of the provisions and needs for temporary care of Jewish 
children in New York City. 

Through this division of the Bureau’s work very close and 
intimate cooperation is maintained with the Department of Public 
Charities of the City of New York, which regularly inspects all 
institutions subsidized by the city. The reports of the Department 
on Jewish institutions are submitted to the Bureau promptly after 
each inspection so that pressure can be exerted to remedy such 


7 


defects in management and equipment as are discovered. In 
similar fashion there is an exchange of information between the 
Bureau and the Russell Sage Foundation, as well as the Bureau 
of Advice and Information of the Charity Organization Society. 

Cordial cooperation exists also between the Bureau and the 
State Board of Charities. The Bureau is notified of all applications 
for certificates of incorporation on the part of the Jewish organi¬ 
zations, so that an investigation can be made and the Bureau’s 
opinionl submitted to the State Board of Charities before the cer¬ 
tificate of incorporation is granted. 

All of these avenues of cooperation and sources of informa¬ 
tion have been constantly utilized during the existence of the 
Bureau for the gathering of a mass of information, which will 
continue to be more and more valuable as the work of the Bureau 
develops. It can be fairly expected that before another year has 
gone by there will be in the files of the Bureau a report of com¬ 
plete investigation on nearly every institution doing Jewish work 
in New York City. In the course of regular work there is being ac¬ 
cumulated a mass of bibliographical material which will be a valu¬ 
able part of the Bureau’s files. The value of such a center of infor¬ 
mation, both from the purely research standpoint as well as for 
practical reasons, need hardly be emphasized here. Each request 
for an investigation of an institution or an organization has been 
used as an opportunity for gathering detailed and complete infor¬ 
mation with regard to all phases of its work. Though this has 
meant occasionally devoting more time of the staff members to 
any particular request than the immediate needs might demand it 
was felt that for future purposes it was important to gather as 
complete information as was available. It is intended at regular 
intervals to check up these reports and bring them to date. Any 
changes in the work of an institution which come to the notice of 
the Bureau are noted in the report. 

As I indicated before, the Bureau does not have a Division of 
Accounting and Record-keeping, although during the course of an 
institutional investigation a careful study is always made of the 
methods of record-keeping and the methods of accounting. 
Through such a division an effort would be made to introduce in 
all institutions proper methods of record-keeping. An important 
branch of the work of this division would be scientific budget 
making, as well as the standardization of accounting methods in 
institutions. A division, including a Training School for Research 
Workers and the direction of Personal Service, might be tied up 

8 


with the present Jewish School for Communal Workers, the Bu¬ 
reau providing the practical field training for students enrolled in 
the school. The division might also well act as a central point for 
the mobilization of volunteer workers and their direction into 
proper fields of personal service. 

Now then, what does this Bureau mean to New York City? 
It means that we have an expert body holding a watchful, sur¬ 
veying eye over our philanthropic activities; constantly analyzing 
the community’s needs and recommending proper means for 
meeting such needs. New York City, in the Bureau, has an 
agericy which acts as a center of information for contributors and 
beneficiaries alike—recommending to the former the merits for 
support of institutions asking assistance; recommending to the 
latter the institutions which stand ready to meet their specific 
needs. It has an organization which can maintain a proper 
relationship between public governmental bodies and private 
agencies. It has an organization which can promote proper 
cooperation among the many agencies engaged in philanthropic 
work and will see that their activities are properly coordinated. It 
has an agency which can insist that organizations seeking the 
support of the public maintain’ the high standards of work and 
management which should be required of them in a modern 
community. 

What can such a Bureau mean to a smaller community? 
What can it mean, for example, in a city like Pittsburgh ? Here 
it need not be limited to sectarian auspices. A bureau established 
under the joint auspices, let us say, of the Chamber of Commerce 
and the Central Council of Social Agencies, with an advisory 
committee, including persons thoroughly informed with regard to 
the different fields of social work, can: do in Pittsburgh what the 
Bureau of Philanthropic Research is doing in New York. And the 
budget need not exceed $5,000 per year. 

Has the Bureau of Philanthropic Research possibilities for 
national scope? It has. In pure research work it can gather 
statistics and facts of importance to Jewish philanthropy 
throughout the country. In cooperation, perhaps, with the field 
bureau of the National Conference of Jewish Charities it can 
make surveys in interior communities by delegating one or more 
members of its staff to such work. When' the need arises any¬ 
where for an expert investigation of a single institution the 
Bureau can assign to the work a member of its staff who has 
developed the needed technique in the study of social problems 


9 


where they are perhaps most complex, together with the advice 
and support of the members of the Bureau’s advisory committee, 
within whose work the institution under investigation would 
naturally come. 

In conclusion I wish to say that in this short paper I have 
been able to touch upon but a few of the striking things in our 
year’s experience. On the part of those directing the work of the 
Bureau there has been the desire to protect its absolute impartial¬ 
ity; and to so guide the work that under all circumstances the 
Bureau might be an agency of the whole Jewish community 
rather than the instrument of any section of that community. 


PD 2.77 


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